Alternate Route Handbook

7. Implementation

Figure 7-1. Changeable message sign message diverting traffic to an alternate route.

INTRODUCTION

When a ranking incident responder or Incident Commander decides to implement an alternate route plan, all stakeholders should follow the implementation procedures contained in the alternate route plan. The alternate route plan must clearly identify the duties of all participating personnel and provide clear instruction regarding equipment deployment and personnel activity in the field to support the implementation of the alternate route. It is expected that each stakeholder will have conducted an advance briefing or training exercise for pertinent response personnel on alternate route implementation. Such training allows personnel to become familiar with the plan and associated traffic control initiatives that, in turn, facilitate rapid implementation in the field when an alternate route is required. Table 7-1 describes the role of stakeholders that may be involved in the implementation of an alternate route plan.

Table 7-1. Stakeholder involvement in alternate route plan implementation

STAKEHOLDER	ROLE
Transportation/public works agency	Assist the incident responders in the collection and distribution of traffic condition information, on both the primary route and alternate route, for the purpose of deciding whether to implement the alternate route. Provide traffic control equipment, as necessary, to facilitate traffic control and the provision of motorist information on the alternate route. In accordance with implementation protocol, advise the Incident Commander on whether to implement an alternate route. Monitor traffic conditions on the alternate route if surveillance equipment exists. Modify traffic signal timing according to prevailing traffic conditions. Disseminate traveler information messages, via several outlets and controlled devices, to support alternate route operation. During implementation of an alternate route, maintain contact between agencies in charge of the roadways serving as the primary route and the alternate route.
Law enforcement	May have the authority at the scene of an incident, as Incident Commander, to implement an alternate route. Support alternate route operation, with numerous traffic control officers serving either in a traffic monitoring and/or traffic control role, in the field.
Fire department	May have the authority at the scene of an incident, as Incident Commander, to implement an alternate route.
Emergency management agency/Homeland Security agency	May have the authority at the scene of an incident, as Incident Commander, to implement an alternate route.
Transit agency	Review and adjust scheduled operations affected by the primary route closure when an alternate route is implemented. Consider operations modifications that include full or partial use of implemented alternate routes to service transit stations.
Turnpike/toll authority	May have many of the same implementation responsibilities that a transportation/public works agency would typically have, if traffic is being diverted from a toll road. Implement the plan to suspend tolls, if alternate route implementation protocol specifies the suspension of tolls. Notify travelers, media, and law enforcement about the toll suspension.
Major incident response team	Support, through traffic control equipment deployment, alternate route implementation.
Freeway service patrol	Support traffic control and monitoring activities on an alternate route or at primary route connection points. Patrol congested areas for the purpose of detecting and responding to any secondary incidents that may occur.
Media	Disseminate to motorists alternate route information and other travel information obtained from transportation and law enforcement agencies.

IMPLEMENTATION PROCESS

Once ranking officials have made a decision to divert to an alternate route, they must choose which alternate route to implement. Usually, the primary alternate route will be implemented. However, responders may instead choose to use the secondary alternate route under certain conditions. Reasons for implementing a secondary alternate route include (1) concurrent roadwork activities along the primary alternate route that cannot be terminated, (2) concurrent incidents along the primary alternate route, (3) unusually high background traffic volume on the primary alternate route, and (4) out-of-service traffic surveillance equipment or roadside traveler information devices along the primary alternate route. In addition, the availability of traffic management resources (e.g., staff, vehicles, equipment) may influence specific alternate route selection.

Interagency communication is essential to successful alternate route plan implementation. Communication between agencies is especially important when the alternate route plan spans multiple jurisdictions. The agency responsible for making the decision to implement an alternate route should confer with all involved stakeholders in order to verify available resources and obtain information that influences implementation decision criteria.

Before traffic is diverted from the primary route, the necessary portable signs, cones, barricades, and traffic control officers should be in place per plan protocol. Simply stated, the deployment of adequate resources is key to the safe and efficient operation of the alternate route.

TMC operators may support alternate route implementation through monitoring, traveler information dissemination, and traffic signal system control. The alternate route plan may include CMS and HAR message sets in addition to traffic signal timing plans designed for alternate route operations. If traffic management strategies cannot be implemented remotely from the TMC, then technicians should be dispatched to implement the plan. Ideally, the TMC should serve as a central base location for all communication. TMC operators should maintain continuous communication with response personnel and coordinate updates on incident management activities and alternate route operation.

Regardless of what roadside methods are chosen for information dissemination, the media should be provided with up-to-the-minute updates on the situation so that they can disseminate the appropriate information to the public. In some jurisdictions, the transportation/public works agency may notify the media of the situation (or media may be present at a TMC); in other jurisdictions, law enforcement is responsible for notifying the media.

The operation of the alternate route should be monitored both (1) remotely from the TMC, if one exists, and (2) by transportation and law enforcement personnel stationed in the field. The TMC can monitor traffic flow and queue buildups, making adjustments to certain components of the alternate route traffic management plan as necessary. Field personnel should monitor traffic conditions and modify field traffic control as necessary. Transportation personnel may drive the alternate route and check that signs, cones, and/or barricades remain correctly placed. If traffic conditions on the alternate route begin to deteriorate, it may be necessary to modify the alternate route traffic control plan, implement a secondary alternate route, or meter traffic diverting to the primary alternate route, assuming that the incident on the primary route blocks only a portion of available travel lanes. Table 7-2 contains a checklist for developing an alternate route implementation plan.

Table 7-2. Implementation plan checklist

APPLIES	ACTION
TMC Surveillance and Control
	Indicate stakeholders staffing the TMC in addition to the stakeholders involved in incident management.
	Specify equipment needs and setup.
	Indicate procedures for coordinating with stakeholders.
Operations Management
	Indicate scenario-based criteria for implementing alternate route plan components.
	Include a series of operations details for implementing the alternate route plan.
	Indicate procedure for revising the alternate route plan.
	Specify contingency plans if the alternate route plan must be prematurely terminated. Indicate available secondary and tertiary plans.
	State protocol for terminating the alternate route plan.
Contact Information
	Provide contact information for individual team members. Home phone, work phone, cell phone, pager number, fax number, e-mail address, unit/radio assignment, rank, detail assignment.
Communications
	Indicate guidelines and restrictions regarding use of various radio channels or talkgroups (e.g., field-to-field communications, field-to-central communications, non-incident communications).
Response Team Organization
	Identify stakeholder duties, responsibilities (e.g., traffic control, traffic signal operation, traveler information device operation), and jurisdiction.
	Specify highest ranking stakeholder representative in addition to midlevel managers.
	Summarize chain of command.
Equipment and Infrastructure Management
	Specify locations and quantities of traffic control and other support equipment (e.g., portable CMSs). Indicate equipment owner and, if applicable, power source.
	Include equipment operating instructions (e.g., remote HAR programming).
	Indicate locations of temporary static signs and descriptions for each alternate route plan.
	Specify planned traveler information message sets (e.g., CMS and HAR).
	Indicate protocol and personnel charged with monitoring and programming traveler information devices.
	Indicate protocol and personnel charged with implementing different traffic signal timing plans as needed.
	Indicate protocol and personnel charged with monitoring traffic surveillance equipment (e.g., CCTV).

Once the incident has been cleared, and the primary route has been reopened to traffic, all stakeholders should be notified. The TMC should continue to monitor traffic on the primary route and the alternate route and note when traffic has returned to pre-incident conditions. Transportation personnel should remove portable equipment and update CMS and HAR messages. Personnel may be asked to complete an incident log and participate in a future incident debriefing to discuss successes and lessons learned.

DEBRIEFING AND EVALUATION

Evaluation represents a key element in maintaining a successful roadway incident diversion practice and facilitating improved efficiency in alternate route implementation and operation during future event occurrences. Stakeholder debriefings on specific events involving use of an alternate route mark the most common evaluation activity. However, other evaluation techniques, such as public surveys, may yield key observations not apparent to incident responders charged with operating or monitoring an alternate route. Evaluation results may include recommendations for alternate route modification, procedural improvements, resource coordination, future training, or institutional support.

Stakeholder Debriefing

Stakeholders should conduct a debriefing session within 30 days of a major event that required use of alternate routes. The meeting will likely address all activities involved in managing the incident or event. With regard to assessing alternate route implementation and operation, the debriefing discussions should include the following:

• Recreate the chronology of implementing, operating, and discontinuing the alternate route, and note key decision criteria.
  
• Provide positive and negative aspects of the alternate route implementation and
  operation.
  
• Recommend possible improvements.
  
• Discuss various suggestions, and determine necessary alternate route plan and implementation protocol revisions.
  
• Terminate meeting on a positive note.

When a debriefing meeting takes place to discuss and evaluate alternate route operation during a past incident or event, the use of graphic aids (e.g., maps, photos, videos) proves very useful, particularly to illustrate actual conditions, such as traffic operations and traffic control measures. At a minimum, a map outlining the incident site and the alternate route should be provided at the meeting.

An after-action report may be prepared to document the minutes of a debriefing meeting in addition to the results of any quantitative evaluation and/or operational cost analysis conducted using data collected during the operation of an alternate route.

Public Survey

The Wisconsin DOT implemented a Web survey to evaluate their Blue Route alternate route in Madison. A sign posted on the alternate route directs travelers to a Web site, where they can answer questions about the effectiveness of the alternate route. Survey question topics include the following:

• Does the responder prefer to follow the alternate route or remain on the freeway (primary route)?
  
• Did the responder use the Blue Route?
  
• Does the responder believe that he/she saved time using the Blue Route?
  
• Why did the responder choose to use or not use the Blue Route?
  
• Does the responder believe that the information provided is reliable?
  
• Did the responder find the Blue Route to be congested?
  
• Did the responder find the Blue Route to be easy to use?
  
• Did the responder find the Blue Route signage to be adequate?
  
• Does the responder believe the Blue Route alternate route signage to be confusing during non-incident conditions?
  
• What was the origin-destination of the respondent's trip?

Because alternate routes are intended to serve the traveling public, a Web survey of travelers who traversed an alternate route is one of the most cost-effective methods of gaining feedback on alternate route implementation.